Terms of Reference
Introduction and Background
Guildford Borough Council has decided to undertake a Community Governance Review (CGR) under the provisions of the Local Government and Public Involvement in Health Act 2007, to consider community empowerment or community governance options for the urban area of Guildford.
A request for a CGR was sent to the Council earlier this year by Guildford Residents Association. It included a suggestion for the creation of three parishes described as Central, East and West. This, however, did not as required delineate boundaries by reference to a map, and therefore could not be evaluated.
Local Government Reorganisation (LGR) proposes the formation of unitary authorities for Surrey, the abolition of Surrey's existing eleven district and borough councils and the Surrey County Council. HM Government envisages that by April 2027 new unitary authorities will be vested in Surrey at which stage the existing district, borough and county councils would be wound up.
What is a Community Governance Review?
A CGR is a review of the whole or part of the Guildford Borough to consider one or more of the following:
- Non-parish forms of community empowerment
- Creating, merging, altering or abolishing parishes
- The naming of parishes and the style of new parishes
- The electoral arrangements for parishes (the ordinary year of election, council size, the number of councillors to be elected to any new council, and parish warding), and
- Grouping parishes under a common parish council or de-grouping
Why undertake a Community Governance review?
A CGR provides an opportunity for principal authorities to review and make changes to community governance within their area. Such reviews can be undertaken when there have been changes in population or in reaction to specific, or local, new issues to ensure that the community governance for the area continues to be effective and convenient and it reflects the identities and interests of the community.
Government guidance emphasises that recommendations made in a CGR should bring about improved community engagement, more cohesive communities, better local democracy, and result in more effective and convenient delivery of local services.
Within the 'Final Proposal for Local Government Reorganisation in Surrey - Shaping Surrey's Future' setting out the Borough Council's proposals for unitary authorities was a commitment to plan a community governance and community empowerment approach. This included an undertaking to conduct CGRs as appropriate to establish the desire for various forms of non-parish community empowerment or parish council formation in unparished areas.
Considerations of a Community Governance Review
Section 93 of the 2007 Act requires principal councils to ensure that community governance within the area under review will be:
a) reflective of the identities and interests of the community in that area; and
b) effective and convenient for the community in that area.
In so doing the review is required to consider:
a) the impact of community governance arrangements on community cohesion; and
b) the size, population and boundaries of the local community or parish
Scope of this Review
Guildford Borough Council has resolved to undertake a CGR to consider whether there is a desire and need for any of the following: taking no action and awaiting the creation of a unitary authority, a non-parish form of community empowerment, or creating one or more parish councils for the unparished urban area of Guildford.
If the latter is favoured, the review will consider the most appropriate boundary and governance arrangements for the unparished urban area of Guildford.
This review could also consider any alternative proposals that are submitted. Such alternative proposals must explain clearly the community empowerment or community governance model that is proposed, and it must define the area(s) to which they relate by reference to a map. It must also provide the rationale for and benefits of the proposal(s).
Who will undertake the community governance review?
The Local Government and Public Involvement in Health Act 2007 provides that a principal authority, may conduct a CGR, and following statutory consultations can evaluate and report the outcome. Guildford Borough Council, therefore, is responsible for undertaking the CGR.
The review will comply with the legislative and procedural requirements set out in the 2007 Act, as well as statutory guidance and best practice models. This includes guidance produced jointly by HM Government and the Local Government Boundary Commission for England (LGBCE). The review will follow the approach set out in these Terms of Reference, including the indicative timetable.
Non-parish forms of community empowerment
The Council is required by law to consider non-parish forms of community representation or community engagement. Government guidance states: "There may be other arrangements for community representation or community engagement in an area, including neighbourhood area committees, neighbourhood management programmes, tenant management organisations, area or community forums, residents' and tenants' associations or community associations, which may be more appropriate to some areas than parish councils."
Considering the accelerated timetable for LGR in Surrey, and having regard to the above guidance this CGR seeks the views of Guildford residents, businesses and other stakeholders about the following options for the unparished urban area of Guildford
Community Governance Review options
1. No change option - Await the creation of the new Unitary Authority
HM Government intends that Shadow Unitary Authority elections are held in May 2026. The successor unitary authority, being the future local council for the area of Guildford and surrounds, might be considered well placed to conduct a community governance review of its own to set up community governance arrangements that fit with this successor authority. The Council is aware of the view that it may be legitimate not to provide new forms of community empowerment or community governance at this time given that LGR is proposed to occur rapidly in Surrey.
PROs - Allows the future principal authority to decide the future of local governance. If this option were favoured, this CGR could conclude on that basis and the views expressed by respondents could be conveyed to the successor authority.
CONs - It is unknown whether community governance would be an early priority for a successor unitary authority, though it's thought that community engagement would be.
2. Community empowerment option - Neighbourhood Area Committee
A Neighbourhood Area Committee (NAC) is a formal sub-structure set up by a principal council - e.g. Guildford Borough Council and/or a successor Unitary Council - that would engage with and on behalf of the unparished urban area of Guildford.
Responsibilities could include local planning decisions, street scene matters, public spaces, and community development oversight. NACs are comprised of elected borough councillors and can involve partners too.
PROs - NACs can be quickly established at a comparatively low indirect cost to taxpayers because they do not have the statutory powers and duties that parish councils have. The set-up and operating costs are met by the principal authority, and that authority can choose to delegate certain functions and budgets to the NAC, providing some adaptability.
CONs - If this option were favoured, the principal authority (currently GBC) would have responsibility for the NAC's existence, remit, membership, and funding. A successor principal authority (e.g. a new unitary authority) would inherit this responsibility, and could choose to retain, change, or disband it. So, not necessarily long-term.
3. Community governance option - Create a new parish council or council(s)
The Council notes that what sets parish councils apart from other kinds of community representation and community empowerment is the fact that they are a democratically elected tier of local government with directly elected representatives, independent of other council tiers and budgets, and possessing specific powers for which they are democratically accountable.
PROs - Local parish councils play an important role in terms of community empowerment at a local level, and they do have certain duties and provide some services.
Parish councils have a key role to play in representing the views and promoting the needs of the borough's local communities and neighbourhoods.
CONs - All the funding for their operating costs and most services must be raised in the form of a new charge, known as a precept, payable as a proportion of Council Tax.
There is no limit on the amount that a parish may raise in respect of its precept each year.
What do Parish Councils do?
By way of information, a summary of the general powers and duties of parish councils is attached at Annex 1.
Community governance option. Proposal 1 - A single parish council for Guildford
One proposal is to create a new parish for the entire unparished urban area of Guildford. If this proposal is supported by local people and approved by Guildford Borough Council, the review would then consider recent Electoral Reviews carried out by the Local Government Boundary Commission for England (LGBCE), and in the interest of coterminous boundaries, it would propose that a new parish council for Guildford should replicate the current borough council warding and councillor numbers.
The unparished areas of Guildford are the following current Borough wards:
Borough Ward | Electorate (1 May 2025) | Households (May 1 2025) | Number of Councillors |
---|---|---|---|
Bellfields & Slyfield | 4,506 | 2,600 | 2 |
Burpham | 5,030 | 2,904 | 2 |
Castle | 7,378 | 4,597 | 3 |
Merrow | 7,386 | 4,000 | 3 |
Onslow | 5,296 | 2,926 | 3 |
St Nicolas | 2,365 | 1,678 | 1 |
Stoke | 5,855 | 5,206 | 3 |
Stoughton North | 4,487 | 2,487 | 2 |
Stoughton South | 4,365 | 2,569 | 2 |
Westborough | 5,396 | 4,039 | 3 |
Total electorate | 52,064 | 33,006 | 24 |
The map below highlights the unparished urban area of Guildford and the existing borough wards. All other surrounding areas of the borough are parished.

Community governance option. Proposal 2 - Three parish councils for Guildford
A suggestion for the creation of three parishes described as Central, East and West Guildford was sent to the Council earlier this year. This, however, did not as required delineate boundaries by reference to a map, and therefore could not be evaluated.
The CGR can consider submissions for this and any other alternative proposal, only if:
- they are received during the consultation period
- the area(s) to which they relate are clearly defined by reference to a map
- any rationale for, and benefits of the proposal(s) are clearly expressed
Review timetable and additional information
Review Timetable
Date | Action |
---|---|
17 July 2025 | GBC Executive to consider a report and draft Terms of Reference for the CGR. If agreed, it may make an Executive recommendation to the Full Council. |
29 July 2025 | Full Council to consider the Executive recommendation and whether to grant approval to conduct a CGR |
5 August to 28 September 2025 | Formal Community Governance Review public and stakeholder consultation (1) |
29 September to 15 November 2025 | Evaluation and consideration of responses and formulation of draft recommendations |
9 December 2025 | Based upon outcome(s) of consultation (1), Full Council to consider whether to publish draft recommendations as to the future governance arrangements for the unparished area of Guildford. |
19 January 2026 - 21 March 2026 | Subject to approval above, further public consultation (2) on the Draft Recommendations. If these are for a new parish council(s) these would include a year one budget, precept, and electoral arrangements. |
21 March 2026 - 8 May 2026 | Pause for Shadow Unitary Authority Regulated Election period |
11 May to 30 June 2026 | Evaluation and consideration of responses and formulation of final recommendations |
July 2026 | Final recommendations to be considered by the Full Council |
August to September 2026 | Reorganisation Order made (if applicable) |
May 2027 | Parish council elections to be held under any new arrangements that may be decided (if applicable) |
Consultation
Before making or publishing final recommendations, in line with legislative requirements, Guildford Borough Council will take full account of the views of local people. The Council (whilst still in existence) will do this by:
a) consulting local government electors for the areas under review;
b) consulting any other person or body (including a local authority or elected representative) which appears to the principal council to have an interest in the review;
c) considering any representations received in connection with the review
When taking account of written representations, the Council is bound to have regard to the need to secure that community governance within the area under review is;
a) reflective of the identities and interests of the community in that area; and
b) effective and convenient to the community in that area.
To ensure that this review is conducted transparently, as soon as practicable the Council will publish its recommendations and take such steps as it considers sufficient to ensure that persons who may be interested in the review are informed of the recommendations and the reasons behind them. This will consist of two phases of consultation. The first will seek initial views and desires of residents, groups, and stakeholders, and will form the basis of the draft recommendations. The second phase will seek views upon those draft recommendations, to allow final recommendations to be formed.
Consultation and awareness raising will consist of various communication methods, such as direct mailings, and media posts (digital and printed), and each will explain how residents and stakeholders can submit their views
Charter Trustee Areas
The Council will be mindful of guidance issued by Government that proposals to create a parish council covering all or any part of a Charter Trustee area should carefully reflect upon the following considerations:
a) the effect on the cohesiveness of the area
b) what are the other community interests in the area? Is there a demonstrable sense of community identity encompassing the Charter Trustee area? Are there smaller areas within it which have a demonstrable community identity and would be viable as administrative units?
The only unparished area of Guildford Borough is the urban area of Guildford. To preserve the historic property, privileges, rights and traditions presently enjoyed by the residents of the town, any new arrangements may establish a Charter Trustee area in the town. Trustees can carry out ceremonial functions, but they are not administrative units and would have no control over general functions or services.
Parish boundaries
The Council considers that 'natural' settlements or settlements as they are defined in the Local Development Framework should not usually be partitioned by parish boundaries.
The Council considers that the boundaries between parishes should where possible reflect identifiable physical barriers. These physical barriers might include natural boundaries such as rivers or man-made features such as railways or roads.
In any event the Council would endeavour to select boundaries that are, and are likely to remain, easily identifiable as well as considering any local ties which might be broken by the drawing of boundaries.
Electoral arrangements and councillor representation
If parish council creation is supported, an important part of the Review then is to consider the 'Electoral Arrangements'. GBC would determine how any new council is constituted for the parish, comprising the following:
- The ordinary year in which elections are held
- The number of Councillors to be elected to the council
- The division (or not) of the parish into wards for the purpose of electing Councillors
- The number and boundaries of any wards
- The number of Councillors to be elected for wards
- The name of any ward
The Local Government Act 1972 states that ordinary election of Parish Councillors shall take place in 1976, 1979 and every fourth year thereafter (i.e. 2019, 2023, 2027, etc.) Parish elections, however, may be held in other years to coincide with the cycle of the principal authority, so that election costs can be shared. If the review finds that it will be appropriate to hold an election for Parish Councillors, for a newly formed parish, at an earlier date than the next scheduled ordinary elections, the terms of office of any newly elected Parish Councillors would be so reduced as to enable the electoral cycle to revert to the normal cycle in that electoral area at the next ordinary elections.
The Council notes that the number of Parish Councillors for each parish council shall not be less than five. There is no maximum number and there are no rules relating to the allocation of Councillors. There are, however, guidelines produced both by the National Association of Local Councils and by the Aston Business School and the Council will be mindful of these during the review.
Have your say
There are three ways you can respond:
Complete the online consultation form (opens new window)
- Send your proposal by email to: CGR@guildford.gov.uk
- Send a hard copy of written submissions to:
Terry Stanley, Electoral Services Manager
(Community Governance Review)
Guildford Borough Council
Millmead House, Millmead,
Guildford, Surrey,
GU2 4BB
Please contact us via email: CGR@guildford.gov.uk or telephone 01483 444115 to request the survey in other formats.
Powers and Duties of Parish Councils
The role played by parish councils varies considerably. Smaller parish councils have only limited resources and generally play a minor role, while some larger parish councils have a role like that of a small district council. Parish councils receive funding by levying a "precept" on the council tax paid by the residents of the parish.
The list below is intended as a summary of the main functions of parish councils. It is not intended to be a definitive list of such functions. Where a function is marked with an asterisk a parish council also has the power to give financial assistance to another person or body performing the same function.
Functions | Powers and duties |
---|---|
Allotments | Powers to provide allotments Duty to provide allotment gardens if demand unsatisfied |
Bus Shelters and roadside seats | Power to provide and maintain |
Bye Laws | Power to make byelaws for public walks and pleasure grounds |
Clocks* | Power to provide public clocks |
Closed Churchyards | Powers (and sometimes duty) as to maintain |
Commons Land and Common Pastures | Powers in relation to enclosure as to regulation and management and as to providing common pasture |
Community Centres and Village Halls | Power to provide and equip premises for use of clubs having athletic, social or educational objectives Power to provide buildings for offices and for public meetings and assemblies |
Conference facilities* | Power to provide and encourage the use of facilities |
Crime Prevention* | Powers to spend money on various crime prevention measures |
Drainage | Power to deal with ponds/ditches |
Education | Right to appoint governors of primary schools |
Entertainment and the Arts* | Provision of entertainment and support of the arts |
Environment | Power to act for the benefit of the community by tackling and promoting awareness of environmental issues |
Flagpoles | Power to erect flagpoles in highways |
Highways |
|
Investments | Power to participate in schemes of collective investment |
Land |
|
Litter bins | Power to provide litter bins including receptacles for dog faeces |
Lotteries | Power to promote lotteries |
Monuments and Memorials | Power to agree to maintain monuments and memorials |
Mortuaries and post-mortem rooms | Powers to provide mortuaries and post-mortem rooms |
Nature Reserves | Power to designate statutory to the nature reserves and marine nature reserves - English Nature can designate sites of specific scientific interest |
Nuisances | Power to deal with offensive ditches, ponds and gutters |
Open Spaces, Burial Grounds, Cemeteries and crematoria* | Power to acquire, maintain or contribute towards expenses |
Parish Property and Records |
|
Parks and pleasure grounds | Power to hire pleasure boats in parks and pleasure grounds |
Parochial charities |
|
Planning | Right to be notified of and power to respond to planning applications |
Postal and telecommunications facilities | Power to pay the Post Office, British Telecommunications or any other public telecommunications operator any loss sustained in providing post or telegraph office or telecommunications facilities |
Public Conveniences | Power to provide public conveniences |
Raising of Finances | Power to raise money through the parish precept |
Recreation* |
|
Swimming pools, bathing places, baths and washhouses | Power to provide |
Tourism* | Power to contribute to the encouragement of tourism |
Town Status | Power to adopt town status |
Transport* | Power to (a) establish car sharing schemes (b) make grants for bus services, (c) provide taxi-fare concessions; (d) investigate public transport, road use and needs; (e) provide information about public transport services Community Transport Schemes |
Village greens | Power to maintain, to make bylaws for and to prosecute for interference with village greens |
Water Supply | Power to utilise well, spring or stream and to provide facilities for obtaining water therefrom. |